Speeches

INEC Organised Interactive Session On Delineation Of Constituencies

Jul 3, 2008 - It is my pleasure to host this interactive session organised by the Independent National Electoral Commission (INEC), to address the most important issues of constituency delimitation.

Our profound contribution in this programme is very germane, not only because it is taking place here in Lagos, but more importantly because the Lagos State government, more than any other state in the federation, remains a major stakeholder on issues relating to democratic representation and electoral reform in Nigeria. The socio-economic and political peculiarities of our state readily attest to this assertion.

As a forward-looking government, we assure you that this administration will never hesitate to offer quality contributions to policies and programmes that have the capacity to further help in strengthening democratic values and institutions in the country.

Because democracy is a representative form of governance where people entrust their hopes and aspirations to their elected representatives, these hopes and aspirations cannot be realised unless representation is effective and this cannot happen unless there is capacity in the ratio of persons per elected representatives. The rationale therefore, for delineation is to respond to growing population and re-align constituencies, thereby creating an efficient people to representative ratio.

Although Section 73 of the 1999 Constitution enables INEC to periodically review electoral constituencies, the Constitution does not provide details or guidelines on how this exercise should be undertaken.

Recommended Guidelines

According to the Electoral Knowledge Network, countries disagree on fundamental issues, such as how impartial and independent the process can and should be from the legislative and political concerns. However, the fundamentals principles were noted to be:

• Representatives;
• Equality of Voting Strength;
• Independent, Impartial Boundary Authority;
• Transparency; and
• Non-Discrimination

Representativeness

Electoral ward boundaries should be drawn such that constituents have an opportunity to elect candidates they fell truly represent them. This usually means that ward boundaries should coincide with communities of interest as much as possible. If wards are not composed of communities of interest, however defined, it may be difficult for representatives to serve the constituency well.

Equality of Voting Strength

Electoral ward boundaries should be drawn so that wards are relatively equal in population. Equally populous districts allow voters to have an equally weighted vote in the election of representatives. If, for example, a representative is elected from a ward that has twice as many voters as another district, voters in the larger ward will have the influence of voters in the smaller district. Electoral wards that vary greatly in population – a condition referred to as “malapportionment” – violate a central tenet of democracy, namely, that all voters should be able to cast a vote of equal weight.

Indeed, the Organisation for Security and Cooperation in Europe (OSCE) and the UN Committee on Human Rights (UNCHR) have developed two standards to reflect the principle of equality of voting strength namely:

• The delineation of constituencies in which elections are conducted must preserve the equality of voting rights by providing approximately the same ratio of voters to elected representatives for each ward; and
• The principle of one person, one vote must apply, and within the framework of each State’s electoral system, the vote of one elector should be equal to the vote of another. The drawing of electoral boundaries and the method of allocating votes should not distort the distribution of voters or discriminate against any group and should not exclude or restrict unreasonably the right of citizens to choose their representatives freely.

Independent, Impartial Boundary Authority

Ideally, the legal framework for boundary delimitation should provide that the persons or institution responsible for drawing electoral boundaries be independent and impartial. In addition, the recommendations of the boundary authority should not be subject to modification or veto by the government or by the legislature.

Transparency

This propounds that the delimitation process should be as transparent as possible, with the methodology and guidelines clearly established and publicised in advance. Incorporating public hearings and interactive sessions such as this into the process to allow stakeholders to offer comments for the boundary authority to consider is also important.

Non- Discrimination

Electoral boundaries should not be drawn in a manner that discriminates against any particular minority group. For example, dividing a geographically-concentrated minority group among several electoral districts or wards so that the group constitutes a minority of the voters in every single electoral district or ward should be prohibited.

All of these well accepted principles are commended to INEC as guidelines to be applied in carrying out the delimitation exercise.

Accordingly, if we use these guidelines and use the disputed Provisional Census results released in January 2007 which puts Lagos’ population at 9, 013, 534 using 20 Local Governments and 245 Wards, we are of the view that there is inherent flaw in the representation to persons ratio when similar examples are compared and this must be corrected for balance and equity before the present exercise is concluded.

If we compare environments with similar experience as Lagos, Kano State with provisional figures of 9,383,682 readily comes to mind. With a provisional population advantage of 370, 148 i.e 3.9%, it has 484 Wards which is 239 i.e 49% more wards than Lagos.

With respect to comparison of similarities of registered voters, still dis-similar results are presented; and this defiles logic. Whereas Lagos State with 4, 558, 216 registered voters i.e 12.23 % more than Kano State with 4, 000, 430 registered voters has less wards than Kano State.

This in our view does not seem to be supported by logic neither does it appear fair. If like for like and the principles of equality and effective representation are the critical parameters for delineation of constituencies, which we think they should be, there must be a correlation between number of constituencies and therefore number of representatives where two regions, communities or states have similar population indices.

The present population of Kano is 9, 382, 682 with 484 Wards and about 19, 387 inhabitants in each wards, while the provisional population figure of Lagos State is 9, 013, 534 with 245 wards and 36, 789 inhabitants also in each ward, thereby limiting the efficiency of representation.

Consequently and based on this disparity and using similar figures, we are of the view that if the Independent National Electoral Commission is considering the increase or review of the number of wards in States, it must first of all take cognisance of the shortfall of wards and recommend an upward review of more wards for Lagos State before any delineation is embarked upon in order to correct this imbalance of representation in wards.

Therefore, using an approximate figure of 19, 000 persons per ward and based on similar provisional population figures of over 9 million (9, 000, 000) in both States, Lagos State should have 474 Wards at the minimum, if the provisional figure of the last census is divided by 19, 000 inhabitants as was the case in Kano.

In the light of the foregoing and for the sake of equity, fairness and justice, there is the need first to accord Lagos State the same treatment by adding 229 wards to the 245 wards to add up 474 before the commencement of the general delineation process.

Let me quickly give you a simple analogy on this issue. Only 33,000 policemen are currently policing more than 18 million people in Lagos State. Invariably, this portends that we have almost 600 people per policeman and this dismal police-citizen ratio has grave implications on effective law enforcement and the security of lives, property and investment in the State. In a representative democracy such as we presently have in the country, a legislator representing 200 people, for instance, is bound to be more effective than the one representing 1000 people.

The base maps used for determining enumeration areas in Lagos in the last census did not take cognizance of the newly emerged areas such as Ibeju-Lekki, the Victoria Garden City, Femi Okunnu Estate, Oniru Estate, Lekki Phase 1&11 Estates and Abraham Adesanya Estate etc, inspite of their growing demographic and development status, effective representation and governance in such areas will remain elusive.

Lagos Central Senatorial that houses the economic and commercial institutions in the State is fast growing with increase in number of businesses and investors who choose to live and work in Lagos.

The same thing applies to other fast growing and densely-populated areas such as Alimosho, Badagry, Iba, Mushin, Amuwo-Odofin and Ojo in the Lagos West Senatorial District. The result has been that a large number of people did not know which ward or where their Polling Stations were or found difficulty in locating them.

Democratic and representative governance must offer a lot more than this. If citizens pay tax they must have efficient representation.

The Chairman of INEC has put it correctly in his address when he said “Lagos State for one is unarguably in need of appropriate delimitation of constituencies…to reflect fairness and the realities on ground”. May I say that those realities are that Lagos is bigger than several African countries. It has more children in schools than many other States. Indeed, her enrolment for WAEC was almost the equivalent of the total enrolment figures for the last WAEC Exams alone is almost equivalent to that of all the 5 (five) other States of the Southwest put together.

The truth is that people are migrating to Lagos and all those children and their parents have chosen Lagos as their home.

I therefore enjoin the Independent National Electoral Commission and other relevant institutions in the country to take this matter as a paramount issue of national concern, which must be addressed as promptly as possible. I implore all our people to take the opportunity that this exercise presents by participating actively and providing all necessary support and information to ensure a successful and beneficial exercise in Lagos.

I must say that the ultimate decision rests with the National Assembly and irrespective of what state of the Country the Honourable members of the House of Representatives and Distinguished Senators are representing, their people from Akwa Ibom, Edo, Kano, Kaduna, Bayelsa, Imo, Anambra, Benue, Oyo, Ogun, Osun and from allover Nigeria are in Lagos in our schools, in our Public Service and their investments are in companies operating in Lagos as indeed, they have assets and houses in Lagos. It is a matter of good conscience and an opportunity to truly now show that they represent these people.

Once again, I extend my sincere goodwill to INEC and I wish you all a successful and rewarding interactive session.

Thank you and God bless.

Babatunde Fashola, SAN
Governor of Lagos State